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Informal Organisation and the Persistence of Local Party Structures in Argentine Peronism*

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Informal Organisation and the Persistence of Local Party Structures in Argentine Peronism* J. Lat. Amer. Stud. , – Printed in the United Kingdom # Cambridge University Press An ‘Organised Disorganisation’: Informal Organisation and the Persistence of Local Party Structures in Argentine Peronism* STEVEN LEVITSKY Abstract. This article attempts to fill the void in research on the Justicialista Party (PJ) organisation. Challenging accounts of the contemporary PJ as a weak, personalistic organisation, it argues that the party maintains a powerful base-level infrastructure with deep roots in working- and lower-class society. This organisation has been understated by scholars because, unlike prototypical working class party structures, it is informal and highly decentralised. The PJ organisation consists of a range of informal networks – based on unions, clubs, NGOs and activists’ homes that are largely unconnected to the party bureaucracy. These organisations provided the government of Carlos Menem with a range of benefits in the s, particularly in the realm of local problem-solving and patronage distribution. Yet they also constrained the Menem leadership, limiting its capacity to impose candidates and strategies on lower-level party branches. The Argentine Justicialista – or Peronist – Party (PJ) has long posed a puzzle for analysts. Although Peronism’s electoral strength is beyond dispute, the weakness and inactivity of the party bureaucracy and formal leadership bodies have led scholars to describe its organisation as virtually " non-existent. Scholars dismiss the original Peronist party as a ‘cadaver’ # or ‘little more than an appendage of state bodies’. Similarly, the $ contemporary PJ has been described as a ‘mere nameplate’ or an Steven Levitsky is Assistant Professor of Government at Harvard University. * Research for this article was made possible by grants from Fulbright-Hays and the Social Science Research Council. I am grateful to Javier Auyero, Frances Hagopian, David Samuels and three anonymous reviewers for their helpful comments on earlier drafts. " Fe! lix Luna, PeroT n y su tiempo (Buenos Aires, ), p. Luna writes that ‘no one will be able to write the history of the Peronist party between and because it never existed’. # Marcelo Cavarozzi, Peronismo y radicalismo: transiciones y perspectivas (Buenos Aires, ), p. For a critique of this view, see Moira Mackinnon, ‘Sobre los orı!genes del partido peronista: Notas introductorias’, in W. Ansaldi, A. Pucciarelli, and J. Villarreal, Representaciones inconclusas: Las clases, los actores, y los discursos de la memoria, – (Buenos Aires, ). $ Gabriella Cerruti, El Jefe: Vida y obra de Carlos SauT l Menem (Buenos Aires, ), p. Steven Levitsky ‘electoral committee’ run by a small circle of ‘operators’ in Buenos % Aires. Another look at the PJ organisation, however, reveals a strikingly different picture. The contemporary PJ maintains a massive base-level infrastructure, and its membership of nearly four million makes it one of the largest democratic parties in the world. Moreover, Peronism’s deep social and organisational roots in working and lower class society have enabled it to survive decades of proscription, the death of its charismatic founder, and, more recently, the repudiation of its traditional socio- economic programme. How can the PJ simultaneously be so weak and so strong? A major reason for this confusion is that when scholars look for the PJ, they tend to look in the wrong place. Attention to the weakness of the PJ’s formal structure tends to obscure the vast informal organisation that & surrounds it. The Peronist organisation consists of a dense collection of personal networks – operating out of unions, clubs, non-governmental organisations, and often activists’ homes – that are largely unconnected to (and autonomous from) the party bureaucracy. Although these networks are not found in the party’s statutes or records, they provide the PJ with extensive linkages to working and lower class society. Notwithstanding the existence of an impressive body of literature on Peronism, little ' research has been done on the PJ organisation, and virtually no work has been done on the party’s informal structure. As a result, we know little about how the PJ functions, particularly at the local level. This article takes a step toward filling that gap. Drawing on data collected during an extensive study of local Peronist organisations in Greater Buenos Aires, the article examines how the PJ is organised and functions internally. The article is divided into two sections. The first outlines the origins and contemporary structure of the Peronist party organisation. Challenging characterisations of the party as a weak, personalistic organisation, it argues that the PJ is best understood as an informal mass party. Peronism maintains a powerful base-level infra- % Marcos Novaro, ‘Menemismo y peronismo: Viejo y nuevo populismo’, in Ricardo Sidicaro and Jorge Mayer (eds.), PolıTtica y sociedad en los ang os de Menem (Buenos Aires, ), p. ; and Vicente Palermo and Marcos Novaro, PolıTtica y poder en el gobierno de Menem (Buenos Aires, ), pp. –. & This focus on informal organisation was inspired by Guillermo O’Donnell’s recent discussion of informal institutions in democratic regimes. See O’Donnell, ‘Illusions About Consolidation’, Journal of Democracy, vol. , no. (), pp. –. ' Exceptions include Vicente Palermo, Democracia interna en los partidos (Buenos Aires, ) and Ana Marı!a Mustapic, ‘El Partido Justicialista: Perspectiva histo! rica sobre el desarrollo del partido. La estructura del partido’, unpublished manuscript, Torcuato Di Tella University, Buenos Aires, . Local Party Structures in Argentine Peronism structure, a large activist base and extensive linkages to working and lower class society, but unlike prototypical mass parties, its organisation is informal and highly decentralised. The second section examines the relationship between the PJ and Carlos Menem in the s. Contrary to many conventional accounts, it argues that Menem’s relationship to the PJ rank-and-file was always mediated by powerful local organisations. These organisations provided the Menem government with a range of political benefits, including vast human resources and extensive channels for policy implementation, patronage distribution, and local problem-solving. Yet they also constrained the Menem leadership, limiting its capacity to impose candidates and strategies on lower-level branches. Indeed, local branches routinely rejected – or ignored – instructions from the national leadership, following strategies that had little to do with either Menem or his neo-liberal programme. The article’s focus on the PJ’s internal structure serves two broader analytic goals. First, it highlights the importance of studying informal patterns of party organisation. In many Latin American parties, the organisations that exist ‘on the ground’ differ substantially from those outlined in the statutes, and formal rules and procedures are fluid, manipulated, and even ignored. Nevertheless, relatively little effort has been made to investigate, conceptualise, or theorise these organisational forms. Research on the informal structures of Latin American parties can play an important role in broadening and refining the existing literature on parties and party organisations. Because this literature is based almost ( entirely on studies of advanced industrialised countries, where parties tend to be relatively well-institutionalised, it incorporates little variation on these dimensions. This failure to incorporate a wider range of cases has ) important theoretical costs. Parties with informal structures and fluid internal rules function differently – and with different consequences – * from well-institutionalised or bureaucratic parties. In order to be able to assess these differences systematically we need a more thorough understanding of how Latin American parties work. This article takes a ( For example, Maurice Duverger, Political Parties: Their Organisation and Activity in the Modern State (New York, \); Angelo Panebianco, Political Parties: Organisation and Power (Cambridge, ); Herbert Kitschelt, The Transformation of European Social Democracy (New York, ), Richard S. Katz and Peter Mair, How Parties Organize: Change and Adaptation in Party Organisations in Western Democracies (London, ). ) Scott Mainwaring makes a similar point in his recent work on the Brazilian party system (Mainwaring, Rethinking Party Systems in the Third Wave of Democratisation: The Case of Brazil (Stanford, ), pp. –). * See Steven Levitsky, Crisis, Party Adaptation, and Regime Stability in Argentina’, Party Politics, vol. , no. (), pp. –; Mainwaring, Rethinking Party Systems in the Third Wave of Democratisation. Steven Levitsky step in that direction, going beyond party statutes and formal organisations to examine the informal rules of the game that structure the internal life of the PJ. The article also seeks to contribute to the emerging literature on the politics of economic reform in Argentina. Early analyses of the Menem period characterised the reforms as a kind of neoliberal revolution from above, imposed by a powerful president acting at the margins of the PJ, major interest groups, and the legislature and other democratic "! institutions. Indeed, the Menem presidency was characterised – along with those of Fernando Collor and Alberto Fujimori – as a near- "" archetypal case of ‘neo-populism’. Recent research suggests that such accounts may have been somewhat overstated. For example, scholars have shown that Menem’s capacity to impose reforms
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